HOU 006a - Gypsy and traveller and travelling showman accommodation needs assessment

67 Pages·2016·1.02 MB·English

Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Luton
Gypsy and Traveller
Accommodation Assessment

Final Report
September 2015

(An Addendum to this report was published in January 2016)

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Opinion Research Services The Strand, Swansea SA1 1AF
Steve Jarman, Claire Thomas and Ian Woodward
Enquiries: 01792 535300 · [email protected] · www.ors.org.uk
© Copyright September 2015
Contains public sector information licensed under the Open Government Licence v3.0

Contains OS data © Crown Copyright (2014)

Important Note
Following the completion of the Luton GTAA the Government issued a revised Planning Policy for Traveller
Sites (PPTS) in August 2015. This included a change in the definition of Gypsies, Traveller and Travelling
Showpeople for planning purposes.
It is important for the Council to consider the impact that this change in the definition may have on the
overall assessment of need, as this will potentially exclude households who no longer travel.
As the new PPTS has only just been released it is unclear at this point what the practical implications of
assessing households against the new definition will be and further guidance from the Government is
awaited.
The site interviews indicated that only a small number of households on sites travel on a regular basis, and
the likelihood is that the overall level of need may reduce once it is possible to apply the new definition to
Gypsy, Traveller and Travelling Showpeople households in Luton.

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Contents

1. Executive Summary ......................................................................................................................... 6
Introduction and Methodology ...................................................................................................................... 6
Key Demographic Findings ............................................................................................................................. 6
Additional Pitch Needs – Gypsies and Travellers ........................................................................................... 7
Transit Sites .................................................................................................................................................... 7
Travelling Showpeople Needs ........................................................................................................................ 7
2. Introduction ................................................................................................................................... 8
The Study ........................................................................................................................................................ 8
Local Planning Policy in Luton ........................................................................................................................ 8
Definitions ...................................................................................................................................................... 9
Legislation and Guidance for Gypsies and Travellers ................................................................................... 10
Tackling Inequalities for Gypsy and Traveller Communities ........................................................................ 13
Funding ......................................................................................................................................................... 13
3. Methodology ................................................................................................................................ 15
Glossary of Terms ......................................................................................................................................... 15
Stage 1: Desk-Based Research ...................................................................................................................... 15
Stage 2: Stakeholder Engagement ................................................................................................................ 16
Stage 3: Working Collaboratively with Neighbouring Planning Authorities ................................................. 16
Stage 4: Survey of Travelling Communities .................................................................................................. 17
Stage 5: Bricks and Mortar Households ....................................................................................................... 17
Stage 6: Current and Future Pitch/Plot Needs ............................................................................................. 18
Stage 7: Conclusions ..................................................................................................................................... 19
4. Gypsy, Traveller and Travelling Showpeople Sites and Population .................................................. 20
Introduction .................................................................................................................................................. 20
Sites and Yards in Luton ............................................................................................................................... 21
Caravan Count .............................................................................................................................................. 22
5. Stakeholder Engagement .................................................................................................................. 23
Introduction .................................................................................................................................................. 23
Accommodation for Gypsies and Travellers ................................................................................................. 23
Unauthorised Encampments and Transit Provision ..................................................................................... 24
Accommodation for Travelling Showpeople ................................................................................................ 24

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Cross Border Issues and the Duty to Cooperate .......................................................................................... 24
Neighbouring Authorities ............................................................................................................................. 25
Key Findings .................................................................................................................................................. 25
Accommodation and Need in Neighbouring Authorities ............................................................................. 25
6. Survey of Travelling Communities ..................................................................................................... 28
Interviews with Gypsies and Travellers ........................................................................................................ 28
Public Site ..................................................................................................................................................... 29
Travelling Showpeople ................................................................................................................................. 29
Unauthorised Encampments ........................................................................................................................ 30
Traveller Households at Stopsley Mobile Home Park .................................................................................. 30
Travelling Community Characteristics .......................................................................................................... 30
7. Current and Future Pitch Provision ................................................................................................ 32
Pitch Provision .............................................................................................................................................. 32
Supply ........................................................................................................................................................... 32
Current Need ................................................................................................................................................ 32
Future Need .................................................................................................................................................. 33
Current Gypsy and Traveller Site Provision - Supply .................................................................................... 33
Additional Pitch Provision: Current Need ..................................................................................................... 34
Current Unauthorised Sites and Encampments ........................................................................................... 34
Concealed Households ................................................................................................................................. 35
Bricks and Mortar ......................................................................................................................................... 35
Waiting Lists ................................................................................................................................................. 36
Temporary Planning Permissions ................................................................................................................. 36
Population and Household Growth .............................................................................................................. 36
Movement to and from sites and migration activity ................................................................................... 37
Overall Need for Luton ................................................................................................................................. 40
Split to 2030 in 5 year Time Periods ............................................................................................................. 40
Transit/Emergency Stopping Site Provision ................................................................................................. 41
Need for Travelling Showpeople Plots ......................................................................................................... 42
9. Conclusions ...................................................................................................................................... 44
Gypsy and Traveller Future Pitch Provision .................................................................................................. 44
Transit Sites .................................................................................................................................................. 44
Travelling Showpeople Needs ...................................................................................................................... 44

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Appendix A: Glossary of Terms ............................................................................................................. 45
Appendix B: Sites and Yards in Luton (July 2015) ................................................................................... 47
Appendix C: Site Record Form .............................................................................................................. 48
Appendix D: Bricks and Mortar Advert .................................................................................................. 51
Appendix E: Technical Note on Household Formation and Growth Rates ............................................... 52

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

1. Executive Summary

Introduction and Methodology
1.1 The primary objective of the 2015 Gypsy and Traveller Accommodation Assessment (GTAA) is to provide a
robust assessment of current and future need for Gypsy, Traveller and Travelling Showpeople
accommodation in Luton. The GTAA provides a robust and credible evidence base which can be used to aid
the implementation of Development Plan policies and the provision of new Gypsy and Traveller pitches and
Travelling Showpeople plots for the period to 2030. The outcomes of this study supersede the outcomes of
the Luton Gypsy, Traveller and Travelling Showpeople Accommodation Needs Assessment that was
published in December 2013.
1.2 The GTAA has sought to understand the accommodation needs of the Gypsy, Traveller and Travelling
Showpeople population in Luton through a combination of desk-based research, stakeholder interviews
and engagement with members of the travelling community. A total of 18 interviews were completed with
Gypsies, Travellers and Travelling Showpeople living on sites and yards. Through efforts to identify
households living in bricks and mortar 2 contacts were interviewed who were able to provide details about
their households and 4 other relatives who are also currently living in bricks and mortar. A total of 12
telephone interviews were also completed with Officers from Luton Borough Council and Officers from
neighbouring local authorities.
1.3 The baseline date for the study is July 2015.
Key Demographic Findings
1.4 Ethnicity data was captured from all of the households that were interviewed on the Gypsy and Traveller
sites. The majority of households stated that they were English Travellers and the remainder were Irish and
Scottish Travellers.
1.5 Demographic information showed a mixed range of ages across the sites, though a much larger proportion
of the population were younger when compared to the overall population of Luton (2011 Census).
1.6 The interviews identified 47 residents living on the Gypsy and Traveller sites. This was made up of 26 adults
and 21 children and teenagers aged under 18. This equates to 55% adults and 45% children and teenagers.
Although not a direct comparison, data from the Census for Luton as a whole (the settled community and
the Gypsy or Irish Traveller community) and for Gypsies or Irish Travellers within the Borough has been
compared to the site population. This shows a significant difference between the site population and that
of the Luton population as a whole, and less of a difference between the site population and the Census
Gypsy or Irish Traveller population for Luton.

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

Additional Pitch Needs – Gypsies and Travellers
1.7 Based upon the evidence presented in this study the pitch provision needed for Gypsies and Travellers to
2030 in Luton is for 14 additional pitches, as detailed in the table below. These figures should be seen as
the projected amount of provision which is necessary to meet the statutory obligations towards identifiable
needs of the Gypsy and Traveller population arising in Luton. A detailed breakdown which sets out the
components that make up this additional need, together with any other issues that have been taken into
consideration are included in Chapter 7 of this report.
1.8 The study has assumed that the need arising from unauthorised encampments and concealed households
is met in the first 5 years, less a supply of 5 pitches that were identified on the public site during the first 5
years of the Local Plan period. In addition total new household formation of 11 is apportioned over the 5
year time periods based on a net compound growth rate of 2.00%.

Figure 1
Extra net pitch need in Luton
2015-2020 2020-2025 2029-2030 Total
Luton 6 4 4 14
1.9 It is also important for the Council to consider the impact that a potential change in the definition of
Gypsies and Travellers may have on the overall assessment of need if this would result in the exclusion of
those who no longer travel. The site interviews indicated that only a small number of households on sites
travel on a regular basis.
Transit Sites
1.1 Given the levels of unauthorised encampments over the summer and winter months that have been
identified in Luton it is recommended that there is still a need for the Council to deliver new public transit
provision for 10 pitches.
Travelling Showpeople Needs
1.2 The outcomes of the study identified that the residents on one of the yards are aware that the existing yard
is becoming over-crowded. However the residents stated that they own land in a nearby local authority and
are exploring whether they can get planning permission to develop a proportion of this land to provide the
family with a new yard to meet their needs. The outcomes of the study are that the other yard is used
predominantly for storage purposes. Therefore it is not recommended that the Council should provide for
any additional Traveling Showpeople plots at this time. The situation regarding the potential development
of a new yard in an adjacent local authority should however be closely monitored.

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

2. Introduction
The Study
2.1 Opinion Research Services (ORS) were appointed by Luton Borough Council (the Council) in April 2015 to
complete a robust and up-to-date needs assessment of accommodation for Gypsies and Travellers to 2030.
The outcomes of this study supersede the outcomes of the Luton Gypsy, Traveller and Travelling
Showpeople Accommodation Needs Assessment that was published in December 2013.
2.2 The study provides an evidence base to enable the Council to comply with their requirements towards
Gypsies, Travellers and Travelling Showpeople under the Housing Act 2004, the National Planning Policy
Framework (NPPF) 2012, Planning Practice Guidance (PPG), and Planning Policy for Traveller Sites (PPTS)
2012.
2.3 The GTAA provides a robust assessment of need for Gypsy, Traveller and Travelling Showpeople
accommodation in Luton. It is a robust and credible evidence base which can be used to aid the
implementation of development plan policies and the provision of Traveller pitches and plots for the period
to 2030. As well as identifying current and future permanent accommodation needs, it will also seek to
identify whether or not the Council needs to plan for the provision of transit sites or emergency stopping
places.
2.4 We would note at the outset that the study covers the needs of Gypsies (including English, Scottish, Welsh
and Romany Gypsies), Irish Travellers, New (Age) Travellers, and Travelling Showpeople, but for ease of
reference we have referred to the study as a Gypsy and Traveller (and Travelling Showpeople)
Accommodation Assessment (GTAA).
2.5 The baseline date for the study is July 2015.
Local Planning Policy in Luton
Luton Draft Local Plan for Public Consultation 2011-2031
2.6 The Draft Local Plan states that a Gypsy and Travellers Accommodation Assessment (GTAA) was undertaken
in 2006 and a review of this assessment (this study) is currently underway to establish the need for Gypsy,
Traveller and Travelling Showpeople accommodation in the borough. Sufficient sites to accommodate any
required pitches (if any are needed), identified through the study would need to be allocated through the
Local Plan or an Allocations Development Plan Document (DPD). As the results of the GTAA are yet to be
completed, sites have not been proposed in this draft of the Plan.
2.7 It goes on to state that a criteria-based policy is required to ensure that existing GTTS sites are safeguarded
for that use and that the provision of accommodation for Gypsies, Travellers and Travelling Showpeople is
located in a sustainable manner. In applying the policy, the extent to which a traditional lifestyle and a

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

settled base can contribute to sustainable development will be considered. The location of new pitches
must enable the residents to access services including schools and health facilities in the same way that
residents of new houses need to be able to access community facilities. In addition Gypsy and Traveller
sites need good access to the road network as they often need to move larger vehicles as part of their
livelihood and way of life.
Policy LP 20 Gypsies, Travellers & Travelling Showpeople
2.8 The existing Gypsy and Traveller site at St Thomas' Road and Traveller Showperson site at 14 Wigmore Lane
is safeguarded for these purposes (as identified on the policies map). Gypsy and Traveller and Travelling
Showpeople pitches and plots, including provision for a transit Gypsy and traveller site, will be permitted or
allocated in accordance with current government policy to meet the needs identified in the Gypsies and
Travellers Accommodation Assessments updated as necessary. Planning permission will be granted for
permanent or transit Gypsy/ Traveller provision where the following criteria can be met:

i. the site has reasonable access to shops, schools and other facilities; and
ii. the site has adequate road access and is well related to the primary road network; and
iii. the site is on previously developed or underused land and is not allocated for another use; and
iv. hardstanding and basic facilities, including electricity, water supplies, sewage disposal and
waste collection, are provided on site; and
v. there would be no unacceptable effect on the environment; and
vi. in the case of Travelling Showpeople sites, the site includes sufficient space for storage and
maintenance of equipment and the parking and manoeuvring of all vehicles associated with the
occupiers.
Definitions
2.9 For the purposes of the planning system, the current definition1 for Gypsies and Travellers means:
Persons of nomadic habit of life, whatever their race or origin, including such persons who on
grounds only of their own or their family’s or dependants’ educational or health needs or old age
have ceased to travel temporarily or permanently, but excluding members of an organised group of
Travelling Showpeople or circus people travelling together as such. (Planning Policy for Traveller
Sites, Department for Communities and Local Government (DCLG), March 2012).
2.10 Within the main definition of Gypsies and Travellers, there are a number of main cultural groups which
include:
» Romany Gypsies
» Irish Travellers
» New (Age) Travellers.

1 Changes to this definition were the subject of a consultation by DCLG that ended in November 2014

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Opinion Research Services Luton Gypsy and Traveller Accommodation Assessment September 2015

2.11 Romany Gypsies and Irish Travellers are recognised in law as distinct ethnic groups and are legally
protected from discrimination under the Equalities Act 2010.
2.12 Alongside Gypsies and Travellers, a further group to be considered is Travelling Showpeople. They are
defined as:
Members of a group organised for the purposes of holding fairs, circuses or shows (whether or not
travelling together as such). This includes such persons who on the grounds of their own or their
family’s or dependant’s more localised pattern of trading, educational or health needs or old age
have ceased to travel temporarily or permanently, but excludes Gypsies and Travellers as defined
above. (Planning Policy for Traveller Sites, DCLG, March 2012).
Legislation and Guidance for Gypsies and Travellers
2.13 Decision-making for policy concerning Gypsies, Travellers and Travelling Showpeople sits within a complex
legislative and national policy framework and this study must be viewed in the context of this legislation
and guidance. For example, the following pieces of legislation and guidance are relevant when developing
policies relating to Gypsies, Travellers and Travelling Showpeople:
» Planning Policy for Traveller Sites (PPTS), 2012
» National Planning Policy Framework (NPPF), 2012
» Planning Practice Guidance (PPG)
» Gypsy and Traveller Accommodation Needs Assessments Guidance, 2007
» The Human Rights Act 1998 (when making decisions and welfare assessments)
» The Town and Country Planning Act, 1990
» Criminal Justice and Public Order Act, 1994
» Anti-social Behaviour Act, 2003
» Planning and Compulsory Purchase Act, 2004
» Housing Act, 2004 (which requires local housing authorities to assess the accommodation
needs of Gypsies and Travellers and Showpeople as part of their housing needs
assessments. This study complies with this element of government guidance)
» Housing Act, 1996 (in respect of homelessness).
2.14 To focus on Gypsies and Travellers, the Criminal Justice and Public Order Act 1994 is particularly important
with regard to the issue of planning for Gypsy and Traveller site provision. This repealed the duty of Local
Authorities from the Caravans Act 1968 to provide appropriate accommodation for Gypsies and Travellers.
However, at this time Circular 1/94 did support maintaining existing sites and stated that appropriate
future site provision should be considered.
2.15 For site provision, the previous Government guidance focused on increasing site provision for Gypsies and
Travellers and Travelling Showpeople and encouraged Local Authorities to have a more inclusive approach
within their Housing Needs Assessment. The Housing Act 2004 Section 225 requires Local Authorities to
identify the need for Gypsy and Traveller sites, alongside the need for other types of housing, when

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